LB 

3218 



TW^NTY-THttiD AND TWl^NTY- 

F9URTH ANNUAt REPbRtS 

m:- rvfj^ luPERINTEINDENt OF 

-^CHOOI^ 1Q20-1922. 



NEW SCHOOL BUILmNdsAf^D 
■' BITES 



A 



BOARD OF EDUCATIOM ^<i.i.^cU^ ..cujUt^^ 



THE CITY OF NEW YORK 



Twenty-third & Twenty-fourth 

Annual Reports 



of the 



Superintendent of Schools 



1920-1922 



NEW SCHOOL 

BUILDINGS 

and 

SITES 



PRESKNTED TO THE BOARD OF EDUCATION 
OCTOBER U, 1922 



/^;?5 ? 



^ 






L18KARY OF CONGRESS 

•'-.C--fVEri 



BOARD OF EDUCATION 
THE CITY OF NEW YORK 



GEORGE J. RYAN, President 
HARRY B. CHAMBERS, Vice-President 

Borough of Manhattan 
MRS. EMMA L. MURRAY M. SAMUEL STERN 

Borough of Brooklyn 
DR. JOHN A. FERGUSON ARTHUR S. SOMERS 

Borough of The Bronx 
HARRY B. CHAMBERS 

Borough of Queens 
GEORGE J. RYAN 

Borough of Richmond 
JOHN E. BOWE 



WILLIAM L. ETTINGER 
Superintendent of Schools 



EDWARD B. SHALLOW 

Associate Superintendent of Schools, 

Committee on School Sites, Buildings and Leases 



TABLE OF CONTENTS 



PAGE 

Administrations, appropriations 31 

Buildings (new), appropriations for 32 

Buildings, cost of 33, 34 

Buildings completed, number of • 11 

Buildings being erected 12, 13 

Buildings, plans for , . . 14, 16 

Buildings, funds for 31 

Buildings, procedure in erecting 36 

Buildings, sites for 36, 37 

Buildings, sittings provided 1918-1922 17 

Buildings, sittings planned for 1918-1922 18 

Continuation schools, building for 42 

Elementary schools, registers in 21 

Elementary schools, new buildings 16, 17, 18 

High schools, plans for new buildings 22, 23, 24 

Registers in 26, 27, 28 

Part-time in 29 

Handicapped children, schools for 43 

Part-time and double sessions 29 

Part-time and double sessions, comparisons 29 

Part-time and double sessions, reduction of 41, 42 

Population of The City of New York 20 



FOREWORD 



August 1, 1922. 

TO THE BOARD OF EDUCATION 

Ladies and Gentlemen : 

I beg leave to submit the report of Associate Superintendent 
Edward B. Shallow, with reference to the acquisition of sites and 
the erection of school buildings for the period from May 1, 1920, 
to June 30, 1922. 

This report supplements the previous one, covering the period 
from January 1, 1918, to May 1, 1920. 

As the report sets forth, noteworthy progress has been made 
in the erection of school buildings during the past two years. 
During that period 21 new elementary school buildings contain- 
ing 27,997 sittings, have been opened and contracts have been let 
for 43 additional elementary school buildings with 36,841 sittings, 
and 5 high schools containing 8,076 sittings. Such remarkable 
achievements bear eloquent testimony to the wisdom and gener- 
osity of the city financial authorities and the Board of Education 
and I hope will make impossible a recurrence of the assumption 
that by some device or other the city can, in the interest of the 
tax rate, dodge the obligation to provide new school buildings for 
our constantly growing school population. I beg leave to restate, 
in this connection, two considerations that I presented in the last 
report, namely : 

"(a) That the present lack of school accommodations with the 
resuhant part-time devices and makeshift double session programs, is 
a great impediment to the efficiency of our educational system. The 
existing congestion also makes impossible the normal extension of the 
system with reference to such projects as the proper development of 
intermediate schools and the establishment of local probationaiy 
schools. 

(b) That, as the present condition has resulted from political 
control and divided financial responsibility, the law be amended forth- 
with £0 that, in connection with the i)urcha3e of sites and the con- 
struction of school buildings, the statute make it mandatory upon the 



Board of Estimate and Apportionment, when requested by the Board 
of Education, to issue corporate stock to provide yearly a fixed mini- 
mum amount of money for such purposes. Such a law would at the 
present moment and for several years to come take from the Board of 
Estimate and Apportionment a power which at times it has been able 
to exercise to the detriment of the school system." 

I shall not attempt to discuss in detail the various features 
of Dr. Shallow's interesting report, but will merely suggest that 
the discussion of such topics as the determination of the order of 
necessity of school buildings, the various steps that must be taken 
in connection with the planning and letting of contracts, and the 
discussion of the urgent need of additional high school accommo- 
dations, are deserving of special attention. 

Both Associate Superintendent Shallow and Superintendent 
C. B. J. Snyder, in a report now available, which is comple- 
mentary to this report, refer to the need of greater foresight in 
the acquisition of school sites. I am in hearty accord with their 
point of view. 

Several months ago, in presenting my views in relation to this 
problem to the Chairman of the Committee on Civic Planning, I 
wrote, in part, as follows : 

"Our enormous population which, when immigration is unrestricted, 
literally spills over adjacent territory, in every possible direction, tends 
to seek areas which are attractive because of the low cost of housing, 
the cost and character of transportation, and the proximity of such 
areas to places of employment. Such shifting of population, which 
means that some sections of the city have partially vacant school 
buildings while others are suffering from excessive congestion, because 
of the lack of such buildings, demands not only that our future build- 
ing program be developed on a comprehensive scale but also in terms 
of the best possible forecast as to the future growth of our city. 

The successful solution of the problem involves a well matured 
civic plan that will provide definite forecasts and also authorizations 
in relation to the development of lines of transportation, the zoning 
of areas for residential as well as industrial purposes and also the 
centralization of financial and business independence in a Board of 
Education obligated to recognize such civic planning as conditioning 
its own program of site acquisition and building construction. 

Too often past policies in relation to school sites and construc- 
tions have been a reflection of transient political expediency on the 
part of a particular municipal administration, and at times a policy 
based exclusively upon local demands has meant not merely the acqui- 
sition of unsatisfactory and inadequate sites, but also no satisfactory 
determination of the relative needs of the different parts of the various 



boroughs. Even xwhen the Board of Education took upon itself to 
make forecasts as to the future growth and distribution of the school 
population and purchased sites in advance of immediate needs and 
also in advance of rising real estate values, such procedure has been 
the basis of unwarranted criticism. 

Of course, it is evident that the development of schools cannot be 
treated as if schools were isolated agencies. Thus, if our schools do 
not supply sufficient play space, adjacent parks or their equivalent 
must supply the need. Nevertheless, such desirable coordinated de- 
velopment has been completely lacking, so that schools are without 
sufficient play space and parks are remote from schools. Moreover, 
realty values are so high in the congested sections of the lower cast 
side, Brownsville, and certain sections of The Bronx, that the cost of 
acquiring additional 'breathing spaces' is almost prohibitive and I am 
strongly inclined to believe that the next step in insuring proper play 
facilities for our children ought to be the building of play buildings, 
the different floors of which will be devoted exclusively to play." 

In conclusion, I wish heartily to commend Dr. Shallow for 
the energetic and efficient manner in which he has handled the 
many difficult problems connected with this important assignment. 

Respectfully submitted, 

WILLIAM L. ETTINGER, 

Superintendent of Schools. 



10 



BOARD OF EDUCATION 
THE CITY OF NEW YORK 

DR. WILLIAM L. ETTINGER, 
Superintendent of Schools. 

Dear Sir: June 30, 1922. 

I have the honor to submit the following report on the work 
of acquiring new school sites and erecting new school buildings 
in The City of New York. This is my second report on this 
subject. The previous report related to such work for the period 
between January 1, 1918 and May 1, 1920. The present report 
covers the period from May 1, 1920 to June 30, 1922. 

During the period covered by this report, notable progress 
has been made in erecting new school buildings. This work has 
been done notwithstanding unfavorable conditions, such as high 
costs of materials and labor, scarcity of labor in certain trades, 
strikes, etc. Failure to complete most of the buildings within the 
contract time, was the result of these conditions in most of the 
cases. 

In Table I., following, it will be seen that 21 new elementary 
school buildings, with 27,997 sittings, have been opened since 
May 1920, and there are under contract 43 additional elementary 
school buildings, seating 36,841 pupils, and five high schools with 
a capacity of 8,076. Tables II. and III. show the buildings now 
under contract. Of the buildings now being erected, Mr. C. B. 
J. Snyder, Superintendent of Construction and Maintenance, re- 
ports that 30 elementary schools and additions, including portable 
or temporary buildings, will be ready for occupancy in September 
next. These will include 18,054 additional sittings. The number 
of high school sittings to be ready in September next will be 2,176. 

As practically no new school construction could be advanced 
during the year 1918 on account of the World War, our building 
work really began after January 1, 1919. The result of our 
building operations for three years and nine months (January 1, 
1919 to September 1, 1922) will be 54 elementary buildings, seat- 
ing 46,489 pupils, and 3 high schools and other schools, seating 
2,176 students. For further information in detail, I refer to 
Tables VI. and VII. hereinafter. 



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16 



TABLE IV. 



Buildings Completed; Buildings Being Erected; Buildings Authorized 

and Planned. 



1. Sittings — Buildings opened since May 1, 1920. 

(a) Elementary 27997 

(b) High none 

— Buildings now under construction 

(a) gementary j^^^ 3,^ ,,,, 28683 ^^^^ 

— Buildings for which plans are 
being prepared 

(a) Elementary j ^r. ,099 54980 

(b) High ^"^" **"' ^"^ • 15040 

Total of 1, 2, 3 Elementary 111660 

Total of '• High 23416 



TABLE V. 

School Buildings for which funds have been authorized previous to Jan. 
1, 1922, but for which no plans have yet been prepared. 

Program Estimated Total 

Year Boro. Sch. Vicinity' of Site Sittings Sittings 

1921 Bx. 70 Weeks Ave. and Being 

174th St. acquired 3,000 

6 Tremont and Vyse 

Aves. (Auditorium) owned 

33 Jerome Ave. owned 360 

21 225th St. and White not yet 

Plains Ave. (temp.) acquired 160 3,520 

Bkn. 190 Georgia and Shef- Being 

field Aves. acquired 2,000 

196 Bushwick Ave. and Being 







Scholes St. 




acquired 


3,000 






142 


Rapeleye 




Being 
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1,080 




Erasmus 


H. S. 


Flatbush Ave. 
Church Ave. 


near 


owned 


864 


6,944 


Qns. 


31 


Kew 

Bayside 




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160 
160 


320 


Rich. 


34 


So, Beach 




not yet 
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160 


160 






Grand 


Total 




10,944 



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19 



DECREASE IN POPULATION AND INCREASE IN ELEMENTARY SCHOOL 

REGISTERS 

The population of The City of New York is estimated by the 
City Board of Heahh in the years when it is not actuahy counted 
by the Federal or the State Government. This estimate is based 
on the Federal Census, the State Census, and other statistics and 
data. 

The figures given in Table VIII. which follows, show that 
the population of Manhattan diminished by 507,770 during the 
two years between 1919 and 1921, while the city at large showed 
a decrease of 266,211. During the same period, the registration 
in the schools increased by 43,454, as will be seen by reference 
to Table IX. This may be accounted for by removals of many 
persons — not heads of families — from the city on account of un- 
employment, military service, or by changed conditions in 
European countries. The increase in total population in one year 
—1913 and 1914 — was 228,982 in the entire city, and the loss in 
two years— 1919-1921— was 266,211. 



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22 

HIGH SCHOOLS 

In my last report I pointed out the necessity for new high 
ichool buildings in various parts of the city, as follows : 

"The building in which the New Utrecht High School is housed is 
an old elementary school building. It is a wooden structure built many 
years ago by the township of New Utrecht. The building was neither 
designed nor equipped for a high school. In 1918 a considerable part 
of the building was badly damaged by fire. A proper high school for 
boys is greatly needed at Bath Beach, where this school is situated. 
The New Utrecht is the only high school for boys in the populous 
territories of Bay Ridge, Bath Beach, Bensonhurst, Borough Park, 
Dyker Heights, Coney Island, and all that growing district between 
Bath Beach and Flatbush. I recommend that funds be requested for 
this building." 

"A new high school is needed in Browns\'ille, in the Borough of 
Brooklyn. There is a sufficient number of boys and girls of high 
school age residing in this locality to fill a large high school building. 
These are now obliged to travel long distances to reach other high 
schools that are crowded and, in some cases, operating on duplicate 
sessions. The Board of Education has owned a large site for a high 
school in Brownsville for the past four or five years. A high school 
building in Browns\'ille would relieve the congestion in the Richmond 
Hill (Queens) High School, and in the following Brooklyn schools: 
Erasmus Hall High School, the Commercial High School, the Boys' 
High School, the Girls' High School, and the Bushwick High School. 
I recommend that this building be built." 

"The Manual Training High School building in Brooklyn, is in 
need of an addition to enable the school properly to carry on tlje 
work of an excellent technical course which was established in this 
school over one year ago. I strongly recommend that this new addi- 
tion be constructed." 

"The Julia Richman High School, Manhattan, is now housed in 
several elementaiy school buildings located widely apart. Some of 
these buildings are old and unsanitary. The school is working imder 
bad conditions. A new site has been selected at Second Avenue, East 
67th Street and East 68th Street, a place centrally located for most 
of the students who attend the school, and two other alternative sites 
have been selected 'farther north and west', as suggested by the Comp- 
troller. Yet no land has been bought for this purpose." 

"The Board of Education has selected three sites for a new high 
school in Washington Heights, Manhattan, for the purpose of giving 
the Department of Finance an option in the matter of purchase. All 
three sites are suitably located. About 3,000 boys and girls in the 
northern part of the Borough of Manhattan, where there is no high 
school building, are now obliged to travel long distances on crowded 
public conveyances to reach a high school. A suitable .school should 
be provided for them. In a report made by the Comptroller to the 
Board of Estimate and Apportionment on December 26, 1919, this 
official did not recommend the purchase of any one of the three sites 



23 



but, instead, recommended that this high school be built at a point 
about a mile and a half farther south than the place where the school 
is wanted by both the Board of Education, and the citizens of Wash- 
ington Heights." 

I am happy to report that we are making good progress in the 
work of providing a sufficient number of high schools for all bor- 
oughs, as the following excerpt from a report which I submitted 
to you on June 2, 1922, will show : 

HIGH SCHOOL BUILDINGS NOW BEING ORGANIZED OR 

ERECTED, AND OTHERS FOR WHICH PLANS 

ARE IN PREPARATION 

Brooklyn : 

(a) The Thomas Jefferson High School in Brownsville, Brooklj-n, 
now being erected, will have a regular capacity for 3,900 students. 
This school, when opened, will relieve the Boys' High School, the 
Girls' High School, Erasmus Hall High School, the Bushwick High 
School, the Richmond Hill High School, and the Jamaica High School. 

(b) Plans for the new building for the New Utrecht High School 
are under way. The capacity will be about 3,900 sittings which will 
afford about 3,267 more sittings than the present building has. 

(c) A site is being acquired for the Girls' Commercial High 
School, and on this site a building of about 2,500 capacity will be 
erected. 

(d) The new Technical High School, which will have a capacity 
of approximately 2,000, is now being organized, and will reduce the 
register of the Manual Training High School from 5,400 to 3,400. 

(e) A new addition of 24 room units to Erasmus Hall High 
School — capacity about 640. 

(NOTE : The buildings referred to under "a," "b," and "c" will prob- 
ably not be ready for occupancy in less than two j^'ears.) 

The net increase in sittings for Brooklyn will be 12,307. 

M.\nhattan; 

(a) The plans for the new building of the Julia Richman High 
School will soon be ready. This building will have a capacity of 
about 3,333. The register of this school is now 4,538 with 4,569 sit- 
tings in seven separate elementally school buildings. 

(b) Plans for the new buildings of the George Washington High 
School will be ready before September next. This building will 
accommodate about 3,943 students. 

In these two buildings will be provided about 7,276 additional high 
school sittings for Manhattan. 



24 



Queens: 

(a) When the additions to the Bryant and the Newtown High 
Schools are completed, about 1,618 additional sittings will be provided 
for Queens. This work has been going on for the past four years. 

(b) Plans will be begun soon for an addition to the Richmond 
Hill High School, providing about 500 additional sittings. 

(c) A site has been selected for a new high school in Jamaica, and 
funds are requested for a building in the budget for 1922. 

Richmond: 
The new addition to the Curtis High School will provide about 
616 seats. 

Hence for the city at large, the sittings in high schools now 
under construction, and about to be erected, will amount to about 
22,300, but these will not be available for some time to come. 

ADDITIONAL NEW PERMANENT HIGH SCHOOL BUILDINGS, 

AND LARGE ADDITIONS TO EXISTING BUILDINGS 

NEEDED THROUGHOUT THE CITY 

Manhattan : 

(a) A new site and building to be situated west of Broadway be- 
tween West 165th and West 181st Streets. This building should have 
a capacity of about 4,000. There are enough commercial students in 
other high schools to fill this to capacity. 

(b) A new addition to the High School of Commerce, of about 
51 classrooms, with a capacity of approximately 2,000. 

(c) A small addition to the Washington Irving High School. 

The Bronx: 

(a) A new building to be erected on land owned by the city in 
the vicinity of 196th Street and Jerome Avenue (the old Reservoir 
tract). This building should have about 4,000 sittings. 

(b) A new site and building to be located north of Westchester 
Avenue and east of the Bronx River. 

(c) A new building for a technical or manual training high school. 

(d) A large addition to the Theodore Roosevelt High School. 

(e) A site should be acquired now for a new high school east of 
White Plains Road, between 200th and 220th Streets, to accommodate 
pupils north of Pelham Bay Parkway and east of White Plains Road. 

Brooklyn : 
(a) A new site and building are needed in the vicinity of King's 
Highway and East 22d or 24th Streets. This is badly needed to pre- 
vent congestion in Erasmus Hall. 

Queens: 
(a) A new site should be acquired, and part of a permanent build- 
ing erected soon, in the vicinity of Baisley and New York Avenues, 
South Jamaica. 



25 

Richmond : 

(a) A new and ample site should be acquired now for a high 
school to be erected in the vicinity of New Dorp. This will be neces- 
sary soon to serv^e several growing villages in the middle of Staten 
Island, and relieve many students of the necessity of travelling long 
distances by train and trolley. 

We shall probably include in our budget for 1923, all these 
items for new schools and sites, which have not been included in 
the budgets for 1921 and 1922. 

In the budget for 1921 were items — 

For new high school buildings $11,600,000 

" " " " sites 670,000 

In the budget for 1922 were items — 

For new high school buildings $13,677,050 

" " " " sites . 720,000 

CONDITIONS IN HIGH SCHOOLS AND RELIEF 
PLANNED 

The Bronx now sends 4,265 students to the Manhattan high 
schools. If the 13,500 additional sittings which we are planning 
for new high school in the Bronx, in our budgets for 1922 and 
1923, are provided by 1925, all the "excess" students now in the 
Bronx (7,392) would be adequately housed, and ample provision 
would be made for 6,000 growth in the next three years. If the 
George Washington High School and the Julia Richman High 
School are erected in the next two years (aggregate capacity 
8,000), and 6,000 additional sittings are provided in other new 
schools, there will be adequate room for all in 1925, in Manhattan. 

The buildings now projected for Brooklyn, Queens, and Rich- 
mond will provide amply for those who wish to attend in 1925. 

It requires considerable time, however, to construct and equip 
a large modern high school building. Relief by this means will 
not be afforded until late in the year 1923, or the middle of the 
year 1924. The urgent and immediate relief needed in the high 
schools is pointed out in the following part of my report to you 
dated June 2, 1922 : 



26 



"On February 1, 1922, there were 93,800 boys and girls registered 
in the high schools of the city; there were 72,111 sittings, or 22,687 
less than the number required to give every student a seat. Of the 
72,111 sittings, 15,878 were in study halls, laboratories, gjannasiums, 
auditoriums, libraries, shops, etc. Eighteen thousand and thirty-six 
(18,036) students were registered in annexts or branches of the reg- 
ular high schools. Many :>t' the high schools are nm on double- 
sessions, and some have triple sessions and 'over-lapping' sessions. 
Some of the schools conduce annexes in several buildings — one having 
as many as six of such branches." 

"The register, the number of buildings, the total sittings (regular 
and emergency), and the percentage of excess register over sittings 
for each borough are shown in the following: 



Number of Excess Per Cent. 

Register High Schools Sittings Register of Excess 



Manhattan 


33,502 


8 


24,699 


8,801 


35 


Bronx 


11,250 


3 


8,123 


3,127 


38 


Brooklyn 


36,532 


10 


28,871 


7,661 


26 


Queens 


10,588 


6 


8,619 


2,969 


30 


Richmond 


1,928 


1 


1.799 


129 


7 



93,800 28 72,111 22,687 



"In the high schools of Manhattan, tliere are 4,265 students from 
the Bronx, 1,345 from Brooklyn, 207 from Queens, and 58 from Rich- 
mond. Of the 33,502 students in the Manhattan high schools, 3.767 
reside north of 125th Street in Manhattan, 6,126 reside south of 14th 
Street and east of Broadway, 3,512 reside east of Fifth Avenue be- 
tween 59th and 110th Streets. Of the 4,358 girls in the Julia Richman 
High School, 1.603 — more than one-third — reside between 59th and 
110th Streets." 

The registration in high schools has increased enormously 
during the present year, not only in this city but elsewhere. More 
voung people are seeking a high school education. Many ai-i 
attending who would leave and go to work if industrial conditions 
were better. 

The figures in Tables X. and XI. will afford interesting com- 
parisons. 



27 












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29 

PART-TIME, DOUBLE AND DUPLICATE SESSIONS IN 
ELEMENTARY SCHOOLS 

Part-time and double session classes have grown rapidly with- 
in the past five years, notwithstanding the fact that 27,997 addi- 
tional elementary sittings have been provided, most of them since 
January 1, 1921. The increase in registers in one year 1914-1915 
was 49,165 and there has been a steady increase ever since. Over 
21,000 additional children were registered last year in elementary 
schools. 

Table XII., following, shows the increase in part-time and 
double session classes. 



30 





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31 



FUNDS FOR CONSTRUCTING N]£\V SCHOOL 
BUILDINGS 

In the work of erecting and equipping new school buildings, 
the Board of Education has the ready and ample support of The 
Mayor and nearly all the members of the Board of Estimate and 
Apportionment. Since 1918, this board has authorized $55,000,000 
for new school buildings and sites, and assurances are given that 
all the funds necessary for building an adequate number of new 
school buildings, will be supplied as fast as the Board of Educa- 
tion can use the mioney for this purpose. 

LTn fortunately, the Board of Education has not been in a 
position to use these building funds as quickly as conditions in the 
schools demand owing to various occurrences and to circum- 
stances in the Bureau of Construction and Maintenance of the 
Board of Education. On February 1, 1918, a destructive fire 
occurred in this bureau which was then located on the three 
uppermost floors of the Hall of the Board of Education at 59th 
Street and Park Avenue, Manhattan. Many valuable records and 
papers of the bureau were destroyed. The bureau then moved to 
what were considered inadequate quarters in the Municipal Build- 
ing. War conditions caused the cost of building materials and 
labor to mount higher and higher until the cost of building and 
equipping a school increased far in advance of pre-war prices. 
Strikes occurred on many buildings. (Note regarding compara- 
tive costs — A general construction contract was awarded on Jan- 
uary 28, 1914, for a 48-room school building in Brooklyn at 
$234,987. A general construction contract was awarded on 
March 3, 1920, for a 48-room school building in The Bronx at 
$834,000. A general construction contract was awarded on 
August 17, 1921, for a 48-room school building in Brooklyn at 
$620,688.) 

The Bureau of Construction and Maintenance is now located 
in ample quarters in a new reinforced concrete building, recently 
purchased, near the Brooklyn Plaza of the Manliattan Bridge. 
Conditions now are more favorable for expediting the preparation 
of plans and the letting of contracts for the construction of new 
school buildings. 



32 
TABLE XIII. 

Appropriations for New Schools and Sites Since 1898. 



Mayor 



Amount of Corporate 
Year Stock Issued 



Van Wyck, Robert A. 



Low, Seth 



McClellan, Geo. B. 



Gaynor, William J. 



Mitchel. John P. 



Hylan, John F. 



1899 
1900 
1901 



1902 
1903 



1904 
1905 
1906 
1907 
1908 
1909 



1910 
1911 
1912 
1913 



1914 
1915 
1916 
1917 



1918 
1919 
1920 
1921 
1922 



$7,683,640.00 
3,500,000.00 
3,700,000.00 



$8,000,000.00 
9,788,430.00 



$9,350,000.00 

15,000,000.00 

13,000,000.00 

3,500,000.00 

8,771,779.00 

1,600,966.04 



$5,270,173.26 

12,138,387.39 

360,490.00 

6,131,085.00 



$798,194.00 

1,500,500.00 

♦6,172,084.68 

*6,797,571.13 



►$10,000,000.00 

7,000,000.00 

8,000,000.00 

15,000.000.00 

15,000,000.00 



*0n December 30, 1918, Board of Estimate and Ap- 
portionment rescinded authorizations of 1916 and 

1917 to the amount of 

And in their stead re-authorized 

Excess of rescindments over authorizations 



$14,883,640.00 



17,788,430.00 



51,222,745.04 



23,900,135.65 



15^8,349.81 



55,000,000.00 



$11,451,478.24 
10,772,724.00 

$678,754.24 



33 



PRESENT COSTS OF CONSTRUCTING AND EQUIP- 
PING NEW SCHOOL BUILDINGS 

In general it may be stated that new school buildings cost now 
over 200^ more than they cost before the late war. This means 
that with the same amount of money that we could build build- 
ings to relieve 3,000 from part-time before the war, we now can 
relieve only 1,000. 

In the following Table XIV. these costs are shown. They 
are referred to elsewhere in this report. 



34 



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36 

PROCEDURE IN ACQUIRING SCHOOL SITES AND IN 
ERECTING A NEW SCHOOL BUILDING 

The question is often asked — Why can not we acquire a site 
and erect a new school building in a much shorter time than is 
now taken for this work? Why should it take a longer time to 
build a new school building than that required to erect a private 
building of equal size and similar construction? The answer is 
found in the fact that public schools are erected with public 
money, and the present legal requirements are that several 
officials, boards and bureaus must approve the work at certain 
stages along the line, and that some time is spent in legally pre- 
scribed advertising. The same prescriptions prevail in the work 
of erecting other public buildings — municipal, state, or national. 
The work of erecting a private building is subject to no such 
formal steps and restrictions, other than compliance with general 
building laws and regulations. 

(a) acquiring school sites 

The following is the procedure in acquiring a school site : 

1st, The site is selected by the Board of Education (Education Law, 
§875). Recommendations as to the approximate situation of the site 
are usually made by local school boards, superintendents, citizens' 
associations, etc. The act of selecting, however, is entirely in the hands 
of the Board of Education. 

2nd, The Board of Estimate and Apportionment is notified of the 
selection, and requested to acquire the site for school purposes. The 
Board of Estimate and Apportionment is the only body in The City 
of New York empowered to acquire real estate for public use (Ed. 
Law, §876). 

3rd, After an investigation of the proposed site by the Board of 
Estimate and Apportionment, this board may approve the site and 
authorize the acquisition of the land, or disapprove the selection and 
refer the matter back to the Board of Education. If the Board of 
Estimate and Apportionment approves the site selected, condemnation 
proceedings are authorized, and the Comptroller is directed to nego- 
tiate for the piu'chase of the land at private sale. If the owner is 
unwilling to sell at a reasonable price, the land is acquired through 
condemnation proceedings. The Board of Estimate and Apportion- 
ment is empowered by the City Charter to pass a resolution vesting 
title to the land in the City on any particular date, when the site is 
needed by that date. i 



37 



4th, The Corporation Counsel has charge of the legal work relating 
to the acquisition of school sites, whether through condemnation pro- 
ceedings, or through private purchase. Condemnation proceedings 
often take nine months or a year. 

5th, The Board of Education is required to prepare two sets of 
maps and surveys of the proposed site. One of these is filed in the 
office of the Register of the County where the land is situated, and one 
is kept in the office of the Board of Education. 

6th, If the site finally acquired for a school has any buildings on 
it, the only body which can order the sale and the removal of the 
buildings is the Sinking Fund Commission, consisting of The Mayor, 
The Comptroller, The President of the Board of Aldermen, The City 
Chamberlain, and The Chairman of the Finance Committee of the 
Board of Aldermen. 

(b) erecting new school buildings 
The procedure in erecting a new building is the following: 

1st, The Board of Education decides that a new school building is 
needed in a certain locality (Education Law, §875) and places an item 
for such building in its next building budget or "program." 

2nd The Board of Estimate and Apportionment is requested to 
make funds available for the purpose. The Board of Estimate and 
Apportionment authorizes the work and provides for the sale of long 
term bonds to meet the expense. 

3rd, In practice, when funds are available, the Board of Superin- 
tendents makes recommendations to the Board of Education as to the 
size of the building, the number of rooms, regular and special. (This 
is a matter of desirable and convenient practice. Such recommenda- 
tions are not required by law.) 

4th, The Board of Education approves the "lay-out" for the 
building and directs the Superintendent of School Buildings to' prepare 
plans and specifications. 

5th The Superintendent of School Buildings must submit the de- 
sign for the building to The Municipal Art Commission for approval. 

6th The plans and specifications for the general construction of 
the building must be submitted, for approval, to the Bureau of Build- 
ings in the appropriate borough. 

7th The plans and specifications for the heating and ventilating 
and for plumbing must be submitted, for approval, to the Department 
of Water Supply, Gas and Electricity. 

8th All plans, including those for furniture, are then submitted by 
the Superintendent of School Buildings to the Board of Education and 
The Superintendent of Schools, for approval. 

9th The Board of Education then submits the plans to the^ Board 
of Estimate and Apportionment for approval. Engineers and other 
subordinates of the Board of Estimate and Apportionment examine 
the plans. 



38 



lOth, The plans are then returned, with approval or disapproval, to 
the Board of Education. 

11th, If the plans are approved, the Superintendent of School 
Buildings then submits projiosed advertisements and contracts to the 
Corporation Counsel for approval. 

12th, If his proposed advertisements and contracts are approved, 
the Superintendent of School Buildings then causes his specifications 
to be printed. Several copies of the specifications are printed and 
several duplicates of the plans are drawn. 

13th, After printing is done, an advertisement is printed in the 
City Record for ten days, calimg icr bids. 

14th, Bids are then opened and the contracts awarded to the 
"lowest responsible bidder." 

15th, The Comptroller is now required to examine the bonds and 
sureties of the lowest bidder and report his findings to the Board of 
Education. 

16th, The Board of Education then signs contract for the work. 
The Auditor of the Board of Education records the contract and re- 
turns it to the Comptroller for a certification as to "financial ability." 

17th, The work of building the school then begins. 

18th, Final payment cannot be made to the contractor until the 
Municipal Art Commission certifies that the building conforms to the 
plans which this commission approved. 



METHOD EMPLOYED IN PREPARING A BUILDING PROGRAM 

The following is, in part, what I stated in my last annual 
report : 

Our aim in preparing a program for building school build- 
ings, is to determine as carefully as possible just where addi- 
tional school room is most needed, and to recommend that a site 
be bought and a building erected in a certain locality, in prefer- 
ence to some other, only on the ground that the children of that 
locality are, or may be, in more urgent need of better school 
accommodations. We try to make equitable recommendations for 
each borough of the city. We note carefully facts, figures and 
circumstances relative to each school and each vicinity. We are 
not moved by unreasonable requests nor by unjustifiable clamor. 

In making recommendations for the new buildings, we con- 
sider present and prospective conditions in groups of schools 



39 




Manhattan Trade School for Girls 
Comer E. 22nd Street and Lexington A\-c. 



40 

where there is present overcrowding or prospective congestion in 
the near future. These groups of schools, in some cases, are com- 
prised in two or more local school board districts, as such. It is 
not a reliable method to plan new schools to relieve the schools 
of one district without reference to adjoining districts. 

The building program is prepared and the "order of necessity" 
determined by considering the following for each group of 
schools : 

1 — The percentage of excess register over sittings ; 

2 — The number of pupils attending on part-time and on double 
sessions ; 

3 — The growth of public school population within the previous 
five years, and, based on this, the prospective growth for the 
next three years ; 

A — The prospects for increase in school population, e. g., increase 
in transit facilities, increase in building of homes, develop- 
ment of new residential tracts ; 

5 — Present residential neighborhoods changing to business or 
manufacturing, or designated for such change as shown by 
"zoning" maps prepared by the Committee on City Planning; 

6 — Recommendations from superintendents, local school boards, 
civic associations and others ; 

7 — Present buildings in part unsanitary and unfit for use ; 

8 — Building permits issued within the previous three months by 
the Bureau of Buildings in each borough. 

Some schools included in the groups which we study, are those 
where there is no congestion, and where conditions are prac- 
tically static and likely to remain so for many years. 

INADEQUATE SCHOOL BUILDING IN FORMER YEARS 

The result of inadequate foresight, policy and program in the 
building of schools in growing parts of the city in years gone by, 
is that now in practically all parts of the city, citizens are ask- 
ing — some of them clamoring — for new school buildings for their 



41 

particular localities. They demand new buildings on the ground 
that their home district is faring worse than others, and this 
claim is often made without knowledge of, or apparently care for, 
conditions existing in other parts of the great city. Our plain 
duty, however, is to be guided by facts — not clamor — and to 
recommend that sites be bought and school buildings be erected 
in the places where the children need them most ; to discover the 
"order of necessity"; and to recommend an equitable use of 
building funds. The "order of necessity" is necessarily not exact 
but approximate. 

In the six years 1913-1919, the per cent, of new sittings pro- 
vided, as compared with increase in registers, shows : 

For Manhattan 62.18% 

For The Bronx 61.96% 



For Brooklyn 53.06% 

For Queens 66.85% 

For Richmond 54.55% 



PROSPECT FOR REDUCING PART-TIME AND DOUBLE-SESSION CLASSES 

TO A MINIMUM 

On June 1, 1922, there w'ere 85,326 pupils in part-time classes, 
and, on the same date, there were in "four-hour double session 
classes" 73,912, and in "five-hour double session" classes 117,721, 
or a total of 276,959, in all short time and double session classes. 

The number of sittings to be provided in elementary schools 
now under construction and in others for which plans are being 
drawn, is 83,663 in 66 buildings. If we add to this number 10,080 
sittings in other buildings projected in the building "program for 
1922," and for which plans will soon be prepared, the total is 
93,743. Were these sittings available now, the result would be 
that all part time in elementary schools would be eliminated and 
the number of pupils in double session classes reduced to about 
90,000. 

The number of sittings in high school buildings now under 
contract and in those in our building program for 1922, for most 



42 

of which plans are being prepared, is 23,416. Were these sitting? 
available at once, part-time and double sessions in high schools 
would be practically eliminated. 

If we estimate that all buildings — elementary and high — now 
under contract and being erected, and others projected, as stated 
above, will be completed and ready for occupancy by January 1, 
1924, and if we estimate that there will be an increase of 30,000 
in elementary school register, and an increase of 16,000 in high 
school register by that date, the number in all part-time and 
double-session classes would then be reduced by about 75 per cent. 

We are making provision in our building budget for 1923 for 
a sufficient number of school buildings — elementary and high — 
to provide seats for all pupils not provided for in the programs 
for 1920-1922, and for the estimated growth in register between 
now and 1925 when our program for 1923 should be carried into 
effect. 

BUILDINGS FOR CONTINUATION SCHOOLS 

I have received recently from Superintendent McAndrew 
and the Director in charge of Continuation Schools, a request 
that provision be made in our building budget for 1923, for five 
sites and buildings to be used solely for continuation school work 
in order properly to carry out the provisions of the Continuation 
School Law. To do this, we estimate that approximately six 
millions will be required in addition to what we estimate for 
other schools, because the localities for which continuation 
schools are requested, are those in the more congested parts of 
the city where real estate is costly. 

Our first duty is, to make ample provision in buildings for 
all regular elementary school children, particularly those of the 
lower grade classes who should have every opportunity for be- 
ginning their education. This we should do before we take care 
of those who have had such opportunities heretofore, and whom 
we are now forcing to "continue" their education. 



43 



BUILDING AND ROOMS FOR PHYSICALLY AND MENTALLY HANDI- 
CAPPED CHILDREN 

I wish to call attention to the progress we have made and 
are making in the matter of providing suitable buildings, rooms, 
and equipment for all classes of handicapped children. 

We are about to erect a new up-to-date structure on East 
23rd Street, Manhattan, for our School for The Deaf. This will 
have ample space and equipment. It is the only public school for 
these unfortunate children in all the greater city. 

In all our large new buildings we provide rooms for anemic 
children (open air classes), for classes of cripples, and for un- 
graded classes (mentally sub-normal). In some of the buildings, 
where necessary, we provide rooms for the blind. We are enlarg- 
ing and improving the New York Parental School, at Flushing, 
for the truants and incorrigibles, so that when this improvement 
is made, we may discontinue other less suitable buildings now 
used for this purpose. 

LARGER AREAS FOR SCHOOL SITES AND PLAYGROUNDS 

For the past four years we have endeavored to acquire a 
suitably large plot of ground for all new school sites, so that the 
children may have adequate outdoor play space, and in this we 
have succeeded in nearly all cases. 

Many years ago, when sites were bought for most of the older 
schools in all the boroughs, scarcely any provision was made for 
outdoor recreation or for a future extension to the building. 
Conditions created by this lack of foresight deprive the children 
of much of the outdoor exercise which they should have, and 
result in large expenditures for additional ground when it is now 
needed. 

teachers' REST-ROOMS 

One important innovation in each of our new buildings is the 
teachers' rest-room, which we are providing. In many of the 
older buildings, we had so-called "teachers' rooms" — small cor- 



44 

ners here and there — with no suitable equipment. Our modern 
rest-rooms are amply large and contain necessary furniture. 
Yourself and Mrs. Emma L. Murray of the Board of Education, 
are entitled to great credit for the firm stand which you took in 
favor of this important feature in school buildings. 

In closing t^is report, I desire to extend to you my cordial 
appreciation of your full and helpful support in all we are trying 
to achieve in better construction of school buildings and in every- 
thing else which makes for sane and progressive school adminis- 
tration. 

Respectfully submitted, 

EDWARD B. SHALLOW, 

Associate Superintendent. 



Stillman Appellate Printing Co. 

200 William Street 

New York 



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